January 2010
EN
The EU Nitrates
Directive
WATER
The background to the Directive
Pure, clean water is vital to human health and well-being, as well as to natural ecosystems, so safeguarding water quality is one of
the cornerstones of European environmental policy. Because water sources are not restricted within national boundaries, an EUwide approach is crucial to tackling problems of pollution. The 1991 Nitrates Directive is one of the earliest pieces of EU legislation
aimed at controlling pollution and improving water quality.
While nitrogen is a vital nutrient that helps plants and crops to grow, high concentrations are harmful to people and nature.
The agricultural use of nitrates in organic and chemical fertilisers has been a major source of water pollution in Europe. For the first
time mineral fertiliser consumption registered a progressive reduction in the early 1990s and stabilised during the last four years in
the EU-15, but across all 27 Member States nitrogen consumption has increased by 6%. Generally, farming remains responsible for
over 50% of the total nitrogen discharge into surface waters.
The Nitrates Directive (1991) aims to protect water quality across Europe
by preventing nitrates from agricultural sources polluting ground and surface waters and by promoting the use of good farming practices.
It is proving effective: Between 2004 and 2007, nitrate concentrations in
surface water remained stable or fell at 70% of monitored sites. Quality at
66% of groundwater monitoring points is stable or improving.
All Member States have drawn up action programmes: there are more than
300 of them across the whole EU. The quality of programmes is improving.
Across the 27 EU Member States, 39.6% of territory is subject to the implementation of action programmes.
© iStockphoto
Farmers are becoming increasingly positive about environmental protection, exploring new techniques such as manure processing.
Agriculture remains a major source of water-related problems, and farmers need to continue to adopt more sustainable practices. Huge efforts
are still needed in order to restore water to optimal quality across the EU.
Fertilizer nutrient consumption
in the European Union 27
20
Mio tonnes
15
N
P₂O₅
K₂O
10
1956/57 1962/63 1968/69 1974/75 1980/81 1986/87 1992/93 1998/99 2004/05
Source: EFMA, 2009
Keeping a check on water
Fact 1: An expanding monitoring network is
demonstrating a trend towards steady or falling
nitrate concentrations
Under the Directive, all Member States have to analyse their waters’
nitrate concentration levels and trophic state. Good monitoring is
crucial, and means setting up high-quality monitoring networks
for ground, surface and marine waters. There are currently 31 000
groundwater sampling sites in the EU, and 27 000 surface water
stations. Belgium, Malta and Denmark have the densest monitoring
networks.
Every four years, the European Commission compiles a report
on implementation of the Directive, based on information from
national authorities. In 2008-2009, for the first time, all 27 Member
States made formal submissions.
The Commission’s report for the period 2004-2007 reveals that
15% of groundwater monitoring stations in the EU-27 found
nitrate levels above the limit of 50mg of nitrates per litre. On the
other hand, 66% reported levels below 25 mg/l. As most of the
EU-12 reported for the first time, trends in concentrations were
only assessed for the EU-15, where two-thirds of monitoring
stations reported steady or falling levels of nitrates, and for
Bulgaria, Cyprus, Estonia and Hungary, where 91% of monitoring
sites found steady or decreasing levels. The map shows nitrates
average concentrations in groundwater.
© iStockphoto
The diverse criteria used to assess trophic state mean it is difficult
to compare different Member States. However, countering
eutrophication in lakes and marine waters remains an important
challenge in large parts of Europe.
Work in progress
5
0
Luxembourg, Portugal and Sweden detected no surface waters
with nitrate levels above 50mg/l.
Fact 2: The Directive sets out a clear strategy for
implementation, which involves farmers
Member States have designated territories draining into waters
that are or could be affected by high nitrate levels or eutrophication
as vulnerable zones. Austria, Denmark, Finland, Germany, Ireland,
Lithuania, Luxembourg, Malta, the Netherlands and Slovenia
decided to provide the same level of protection to their whole
territory, rather than designate nitrate-vulnerable zones.
Member States had to establish codes of good practice for
farmers, to be implemented on a voluntary basis throughout their
territory, and develop specific action programmes for compulsory
implementation by farmers located in nitrate-vulnerable zones.
Periodically, they have to revise their designation of vulnerable
zones, to monitor the effectiveness of action programmes and
amend them to ensure they match up to the Directive’s objectives,
and submit their findings to the European Commission.
Learning from doing
Fact 3: All 27 Member States have drawn up
action programmes to cut nitrate pollution, and
their quality is improving
Action programmes have to include a set of measures laid down
in the Directive, relating to, for example, periods when fertilisation
is prohibited, minimum storage capacity for livestock manure, and
rules to control the spread of nutrients near water or on slopes, to
reduce the risk of contamination.
All Member States have drawn up one or more action programmes.
The deeper the groundwater is, the cleaner it tends to be. The
highest proportion of contaminated water lies between five and
15m below the surface.
Most action programmes cover all the vital measures, and all of
them include the limit of 170kg nitrogen per hectare per year
from livestock manure that is set out in the Directive. But some
programmes need to set tougher rules on storage provisions,
balanced fertilisation and periods when fertilisers are banned.
According to data on fresh surface water, 21% of monitoring
stations in the EU-27 found nitrate concentrations below 2 mg/l,
and only 3% reported more than 50 mg/l. At EU-15 level, 70%
of sites reported stable or falling levels of nitrates compared to
the period 2000-2003. Austria, Germany, Greece, Finland, Ireland,
• Storage capacity has increased since the last reporting period,
but is still a frequent problem. It has to cater for the periods
when applying manure is banned, or impossible due to weather
conditions. The main obstacle for farmers is the lack of financial
resources, so some extra investment may be needed.
• Most farmers comply readily with the rules. Where problems exist, they
centre on inaccurate record-keeping and lack of knowledge, especially
among smallholders. However, several countries report growing support
for environmental protection among farmers.
• Cyprus, Hungary and Spain couple fertiliser application rules with
regulation of irrigation systems. For example, 85-90% of Cypriot farmers
apply advanced irrigation techniques adapted to actual crop needs.
The Directive allows Member States to get derogations to go beyond the
170kg limit, under strict conditions. They have to demonstrate that they can
meet the Directive’s objectives by improving other measures and reducing
nutrient losses in other ways. They must offer objective justifications for
using higher quantities of manure than correspond to 170kg nitrogen per
hectare per year, which are allowed under the Directive: for example, long
growing seasons, crops with high nitrogen uptake, high net precipitation or
exceptional soil conditions. The derogation is granted through a Commission
decision, following a positive opinion from the Nitrates Committee.
Trophic state
When high quantities of nutrients from
sewage or fertilisers contaminate water
bodies, they can cause eutrophication. This
describes the excessive growth of weeds
and algae that choke and discolour the
waters, disrupting normal ecosystems and
depriving fish of oxygen. Around 33% of
monitoring stations in European rivers and
lakes show signs of eutrophication, as well
as some coastal waters.
Seven countries obtained derogations up to December 2009: Austria
(expired at the end of 2007), Belgium (two Commission decisions, for
Flanders and Wallonia), Ireland, Germany, Denmark, the Netherlands and
the United Kingdom (two Commission decisions for England, Scotland and
Wales, and Northern Ireland).
Putting it in context
Fact 4: The Nitrates Directive forms part of a
comprehensive framework of EU legislation to protect
the environment
The Nitrates Directive has close links with other EU policies concerning
water, air, climate change and agriculture, and its implementation yields
benefits in all these areas:
• Reducing nitrates is an integral part of the Water Framework Directive
(2000), which establishes a comprehensive, cross-border approach to
water protection organised around river basin districts (RBDs), with the aim
of achieving good status for European bodies of water by 2015.
• The new Groundwater Directive (2006) confirms that nitrate concentrations
must not exceed the trigger value of 50mg/l. Several Member States have set
their own tighter limits, in order to reach good status.
• Air and soil quality: livestock management and farming cause, among
other things, emissions of ammonia (NH3), which have an impact on human
health and on the environment, as they contribute to the acidification
process in soil, eutrophication of waters and ground-level ozone pollution,
together with other pollutants (sulphur dioxide, nitrogen oxides, volatile
organic compounds). The full implementation of the Nitrates Directive is
expected to contribute to the reduction of ammonia emissions by 14% on
2000 levels by 2020, as measures limiting, for example, amounts of fertiliser
applied, have a positive impact on both nitrate losses towards waters and
ammonia emissions into the air.
• The common agricultural policy (CAP) backs up the Nitrates Directive
through direct support and rural development measures. For example,
several Member States have included nutrient management measures,
© iStockphoto
• Climate change: All activities related to livestock and fertiliser management
release nitrous oxide (N2O) and methane (CH4), greenhouse gasses with
a global warming potential 310 and 21 times higher than CO2 respectively.
If fully implemented, the Nitrates Directive could cut N2O emissions by 6% on
2000 levels by 2020, for example, and contribute to climate change mitigation.
Nitrogen is crucial to life on earth, and the
nitrogen cycle is one of the most important
nutrient cycles for natural ecosystems.
Plants absorb nitrogen from the soil, and
animals eat the plants. When they die and
decompose, the nitrogen returns to the
soil, where bacteria convert it and the cycle
starts again. However, farming activities
can disturb the equilibrium of this cycle, for
example through excessive application of
fertilisers, causing on the one hand water
pollution and eutrophication, due to an
excess nutrient load, and on the other
acidification and greenhouse gas effects,
due to gaseous emissions.
such as wider buffer strips around water courses, among the agri-environmental
initiatives for which farmers can receive payments. Direct support is subject to crosscompliance with EU environmental legislation, including the Nitrates Directive.
• The Urban Wastewater Directive (1991) sets standards for the collection and
treatment of wastewater from homes and some industrial sectors.
KH-30-09-235-EN-D
The nitrogen cycle
Innovation
Fact 5: New technologies such as manure processing are
growing in popularity and offer new ways to deal with
pollution
The reports reveal a growing interest in manure processing initiatives. In livestockintensive areas with high nutrient surpluses, farmers are processing their slurry
for easier transport and management. Techniques range from simple separation
into solids and liquid, to drying, composting or incineration of solid fractions, and
membrane filtration or biological treatment to allow the cleaned liquid fraction to go
back into water systems. This is often combined with digestion processes in biogas
installations for energy production. Groups of farmers have invested in cooperative
installations, notably in Belgium, the Netherlands and Spain.
Livestock farmers are also experimenting with new feeding techniques such as
low N diets and advanced feeding management, which improve feed conversion
efficiency and reduce nutrient excretion.
The outlook is positive
Fact 6: Overall, the 2004-2007 report indicates good progress
towards cleaner water
Overall, 70% of surface waters are moving in the right direction, together with 66% of
groundwater. Cuts in livestock numbers and fertiliser use are helping, but agriculture
is still a big source of nitrogen in surface waters.
Many Member States need to step up their efforts regarding monitoring, identifying
pollution hotspots, and tougher action programmes. The Commission will continue
to work with Member States, supporting them in order to achieve the Directive’s
objectives.
Further information
© iStockphoto
Implementation of Nitrates Directive:
http://ec.europa.eu/environment/water/water-nitrates/index_en.html
© European Union, 2010
Reproduction is authorised provided
the source is acknowledged.
Printed on recycled paper that has been awarded the EU Ecolabel for graphic paper (www.ecolabel.eu)
In the EU, water quality is getting better and action programmes are improving in
quality and effectiveness. The area of EU territory subject to the implementation
of action programmes has grown, especially in the EU-15, where it has gone up to
44.6% of the total area. Since 2004, Belgium, Italy, Portugal and Spain in particular
have increased their vulnerable zone size. However, in several regions the area still
needs to be expanded.